Dr Peter Eckersley Katarzyna Lakoma Nottingham Trent University Annual Conference on Fire Related Research and Developments RE18 West Midlands Fire Service HQ Birmingham 13th November 2018 Overview of presentation ID: 760399
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Slide1
Politics, public opinion and evidence in changes to the governance of fire and rescue services
Dr Peter EckersleyKatarzyna LakomaNottingham Trent University
Annual Conference on Fire Related Research and Developments (RE18)
West Midlands Fire Service HQ, Birmingham
13th November 2018
Slide2Overview of presentation
Slide3The genesis of PFCCs
Statutory duty to collaborate
Six PCCs taking over responsibility for Fire and Rescue – the ‘governance’ model
Each PCC set out a business case to evaluate different models: status quo; ‘representation’; ‘governance’; and ‘single employer’ and consulted locally
Where the PCC wishes to change governance arrangements, the Act requires an assessment of why (
i
) it is in the interests of economy, efficiency and effectiveness,
or
(ii) it is in the interests of public safety for this to happen.
Essex and Northants relatively uncontroversial
Local opposition in West Mercia, North Yorkshire, Cambridgeshire and Staffordshire, but all approved; Hertfordshire abandoned
Other areas have recently proposed a change in governance, e.g. Norfolk
Slide4Public consultations
Slide5Consultation responses I
Force areaAgreeDisagreeResidentsElected repsFRS staffPolice staffCouncilsResidentsElected repsFRS staffPolice staffCouncilsNorthants57%63%92%62% 35%30%4%5% West Mercia64%33%37%036%67%67%8Cambs53%3n/an/a039%1n/an/a2Herts52%11n/an/a134%0n/an/a3
Consultations to seek approval for PCC decision to opt for Governance model: i.e. no other options presented
Slide6Consultation responses II
1 – no benefit2345 – significant benefitRepresentation4218 15 11 14Governance348101830Single employer4513151215
Essex
Staffordshire
North Yorkshire
Elected reps
FRS staff
Police staff
Residents
Public/VCS
Overall
Online
Residents
FRS staff
Police staff
Overall
No change
44
60
41
49
34
50
n/a
n/a
n/a
n/a
n/a
Representation
14
19
5
10
13
11
40
22
27
48
29
Governance
26
12
26
23
30
22
48
61
59
27
55
Single employer
16
9
28
17
23
17
12
17
14
25
15
Slide7The outlier
Slide8CIPFA analyses of business cases
Limited to assessing the impact of the selected governance model on
VfM
(the 3Es) and public safety
Results largely inconclusive, and don’t appear to be influential
Very hard to verify many of the promised financial savings or judge the impact on public safety
Where opinions are expressed, they are sceptical: “it is our view that the scale and timing of the savings included in the LBC… are ambitious and not supported by any detailed plans.” (West Mercia)
None damning enough to warrant a re-think
Slide9So if there is limited public support for change, and business cases are unconvincing, why do reform proposals get the go-ahead?
Slide10What is the narrative/story around potential change?
In favour
Opposed
"Financial" narrative
"Performance" narrative
"Accountability" narrative
"Cuts" narrative
"Ain't broke" narrative
"Power grab" narrative
Setting (policy problem)
Insufficient resources
Lack of coordination
Lack of scrutiny and accountability
Insufficient resources
Problem 'invented' by PCC
PCC wants more power
Villains (cause the problem)
Not specified
Current structural arrangements
Current governance arrangements
Central govt
PCC
PCC
Victims (harmed by the problem)
The public
The public
The public
The public
The public
The public
Heroes (potential fixers of the problem)
PCC
PCC
PCC
Front-line public servants
None: there is no problem to fix
Opponents of change to governance
Plot (process of developing the solution)
Governance model will save money
Governance model will improve joint working
Elected PFCC will make services more accountable
Better funded public services
Two services distinct
but collaboration can be good
Think about who should be in charge of public services
Moral (solution to the problem)
PFCC
PFCC
PFCC
Trust your public servants
More important issues facing fire and police
Many heads are better than one
Slide11Financial narrative
“It’s about time one person was in charge of both services and got a grip on the money being wasted” (Essex)
“The primary reason for supporting the PCC’s proposal expressed by respondents to the Consultation Questionnaire was ‘Financial considerations (67.2%).” (West Mercia)
“If the admin and call centres can be more efficient thus leaving more resources for the front line I see this as a benefit. The same goes for the buildings - if one hub will work for all and the need for half-empty buildings goes again we can put more money into the front line.” (Northants)
Our police and fire services need to find efficiencies at the moment. Working together more would help them find those efficiencies in support functions, rather than on the front line” (
Cambs
)
“Sounds like a good idea as both the Police and Fire brigade seem to be under pressure from the government trying to reduce their budgets, so maybe they will be stronger combined.” (Herts)
Slide12Performance narrative
“It is logical for all the emergency services to be integrated for both speed of delivery and monetary reasons.” (
Cambs
)
“This provides an opportunity for more joined up work at a strategic level.” (
Cambs
)
“More opportunities for early intervention and prevention work. Greater value coming from quicker and easier sharing of information.” (Northants)
Slide13Accountability narrative
“Evidence suggests that single, streamlined governance can accelerate reform and improve public visibility, accountability, transparency and effective scrutiny.” (
Cambs
)
“I think the transparency of a combined commissioner will be a lot more beneficial to Fire and Rescue as opposed to how we often get lost amongst other priorities within the County Council.” (Northants)
“I would suggest that democracy and accountability is improved by having a directly elected Fire Commissioner rather than appointed local councillors acting as an FRA.” (PCC, West Mercia)
Slide14‘Cuts’ narrative
“I am deeply concerned about the proposals for ‘estate rationalisation’. This clearly indicates the closure of local police stations and locating the services in Fire Stations.” (Staffs)
“This is clearly a money saving exercise.” (Essex)
“This is just an exercise to save money not improve our protection.” (
Cambs
)
“The government will use it as an excuse to reduce the budget even more as services are being shared thus making both emergency services unable to cope with the demand and growth of the county.” (Northants)
“Both need more money. No need to work together” (West Mercia)
Slide15‘Ain’t broke’ narrative
“There is no reason why EP and ECFRS can't share knowledge and best practice without the PCC needing to take on both roles.” (Essex)
“Services provided by the Fire Brigade have been operating effectively. Therefore why risk this?” (
Cambs
)
“I would like to see these two essential services remain as they are and interacting as they already do so well… I see no advantage in change for change’s sake.” (Herts)
“The Commissioner’s Local Business Case does not make a compelling argument as to why it is necessary to adopt the Governance Model to address the stated shortcomings in the pace and scope of collaboration between the Police and the Fire and Rescue Service.” (North
Yorks
)
“The two work together at the moment and if something is not broken why change.” (Northants)
Slide16‘Power grab’ narrative
“It is clear that the proposal to move responsibility for the Fire and Rescue Service is being made for purely political reasons and to support the narcissistic ambitions of an individual politician, who has created a false impression of the current situation” (Staffs)
“We live in a democratic society. This proposal gives one person far too much power over such important services.” (
Cambs
)
“There is no need for this. It politicises the Fire Service. Empire building by the Police Commissioner” (Herts)
“Anxious when control is transferred to one person, rather than an elected authority as it weakens democracy. Would like to see the Police Authority return.” (North
Yorks
)
“Mr Campion seems to be way off the mark and power crazy” (West Mercia)
Slide17Do these stories matter? Or do these reforms just illustrate the exercise of political power?
Slide18Conclusions
Essex and Northamptonshire had specific local reasons for governance reform, and little local opposition
Other force areas were much more controversial, business cases were unconvincing and there was often significant local opposition
Yet only Hertfordshire was abandoned - and at the PCC’s instigation – all others were approved by the Home Office
Suggests that P(F)CCs may be more powerful than many first anticipated
Thus far, only Conservative PCCs have requested a change of governance. What does this tell us about the politics of PFCCs? Would a Labour PCC find it so easy?
Do the public realise (or care about) this? What are the democratic implications, given the low turnout figures?